Acquisition Strategy Request for Proposal (AS RFP)

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Air Force Life Cycle Management Center (AFLCMC)

Standard Process for

Pre-Award Acquisition Strategy (AS) and

Request for Proposal (RFP) Development

Process Owner: AFLCMC/AQ

Date: 25 Mar 2015

Version: 2.1

Version

1.0

1.1

1.2

1.3

2.0

2.1

Effective Date

Record of Changes

Summary

16 May 2013

14 Nov 2013

27 Jan 2014

Basic document. S&P Board on 18 Apr 2013 directed revisions. Approved by S&P Board on

16 May 2013

Update to WBS numbering and diagram to reflect ABE numbering. Updated work days to calendar days. Included reference to developed metrics tool.

Revised metrics. Revision approved by S&P

Board on 23 Jan 2014

17 Mar 2014

25 Nov 2014

25 Mar 2014

Updated links and modified some terms.

Revised cycle times for “Develop Acquisition

Strategy (AS)” and “Develop Request for

Proposal (RFP)” in

Figure 1

,

Figure 2

, and

WBS. Changed standard process start date from the submittal of the Presidential Budget

Request (PBR) to PEO signature date of the

Program Charter, ADM, or similar document.

Sample Program Charter included as attachment. Clarified process to be used for

RFP changes after Standard Process completion.

Figure 1

– Top Level Process Flowchart updated to include sub-process cycle times.

Figure 2

– Process Flowchart updated to include PBR Submittal as potential program start date. Reference to Proposal Evaluation

Team Plan (PETP) for sole source acquisitions included under Tools paragraph (7.8). i

Acquisition Strategy (AS) Approval and Request for Proposal (RFP) Development

1.0

Description

.

1.1

The AS is the overall strategy for managing programs from initiation through post production support. An AS is required for all acquisition programs regardless of the acquisition category (e.g., ACAT I, IA, II, III, or Technical Projects) and must be approved by the Milestone Decision Authority (MDA) under the advisement of the

Acquisition Strategy Panel (ASP) (AFI 63-101). Acquisition planning should begin as soon as the agency need has been identified, but not later than the submittal of the

Presidential Budget Request (PBR) Congressional Budget Item Justification documentation (p-doc, r-doc, etc.) for the program. For Foreign Military Sales (FMS) programs, acquisition planning should begin no later than when the final country (if multiple) signs the Letter of Offer and Acceptance (LOA) or LOA Amendment.

1.2

As the AS begins to be identified, the RFP development process can begin. The RFP is a collaborative effort between government stakeholders and industry to develop clear, concise, well-written government requirements to help industry respond to the government’s needs. This top-level standard process (

Figure 1

) describes the AS and

RFP development for a supply-type acquisition program (either competitive or sole source) >$50M with OSD oversight. However, when combined with the Requirements

Approval Document (RAD) process, will support service-type contracts as well. The

RAD Process is used to identify and obtain approval of contracted support service requirements as applicable (AFI 63-138).

2.0

Purpose

.

2.1

The purpose of the AS and RFP process is to consistently develop effective acquisition strategies along with clear, well written requests for proposals to ensure that industry responds appropriately to government requirements to best deliver systems or services that support Air Force capabilities.

2.2

The intent of this process document is to be a top-level road map to train the acquisition team in the development of their AS and RFP and to establish top-level metrics which are identified in paragraph 5.0.

3.0

Potential Entry/Exit Criteria and Inputs/Outputs.

3.1

AS: The entry point for the AS is the acquisition planning start date as indicated by the

Program Executive Officer (PEO) on the Program Charter, Acquisition Decision

Memorandum (ADM), or similar document that initially establishes program objectives, resources, and assigns authority and accountability (Note: For investmentfunded programs, the acquisition planning must start no later than the submittal of the

PBR Congressional Budget Item Justification documentation (p-doc, r-doc, etc.) for the program). A sample Program Charter is included as an attachment (See Attachment 1).

The exit point is an approved acquisition strategy and signed ASP minutes (See

Figure

1

). (If the ASP determines that sufficient funding or requirements have not been provided to support the recommendation, it may either approve the AS contingent upon

PMs follow-up actions or disapprove the recommended AS until further analysis can be completed).

1

3.2

RFP: The entry point for initiating development of the RFP (either sole source or competitive) is the same as the AS. The exit point is the RFP release (Note: In instances where the contracting activity is not co-located with the PEO, there needs to be close coordination with the cognizant Contracting Authority prior to release of a solicitation package).

4.0

Process Workflow and Activities.

4.1

Supplier Input Process Output and Customers (SIPOC),

Table 1

.

Table 1. SIPOC

S

uppliers

Process

Owner

I

nputs

Inputs Required to

Execute Process

P

rocess

Process

Description

O

utputs

Standardized

Process

Training

C

ustomers

Who

Receives

Output

Program

Manager (PM) and

Stakeholders

PM and

Stakeholders

Signed Program Charter,

ADM, Transition Support

Plan (TSP), or similar document, signed LOA or

LOA Amendment.

Development of

Acquisition Strategy or Addendum to an

Existing Acquisition

Strategy.

Signed Acquisition Strategy approving Sole-Source acquisition strategy

Development of a

Sole-Source RFP

Signed

Acquisition

Strategy

Document and

Signed ASP

Minutes

Approved

J&A and

Formal RFP

Program

Acquisition

Team

Program

Acquisition

Team and

Contractor

PM and Source

Selection

Evaluation

Board (SSEB)

Chair

Signed Acquisition Strategy approving competitive acquisition strategy

Source Selection Plan

(SSP)

Development of a

Competitive RFP and identify source selection team

Formal RFP

Signed SSP

Program

Acquisition

Team and

Industry

4.2

Process Flowchart. The top-level process flowchart below,

Figure 1

, represents the essential tasks for the AS and RFP development process for both supply and servicetype contracts. As you can see in

Figure 1

, development of the draft AS and RFP can be accomplished with some concurrency. Because of this concurrency, the process flow days have been detailed in a cumulative baseline of 330 calendar days for servicetype contracts >$50M with OSD oversight as well as supply-type contracts which includes the concurrent RAD process. The top-level development activities are further defined in

Figure 2

for both a sole-source acquisition and a competitive acquisition.

4.3

Work Breakdown Structure (WBS). The attached WBS provides additional detail for the activities shown in the process flowcharts. For an MS Excel version of the WBS see

Attachment 2

. Extracts from the WBS are at

Attachment 3

for both a sole-source acquisition and a competitive acquisition. You may utilize the WBS activities to form the basis of a schedule or you may tailor and add columns of supporting information.

4.4

Additional work tables, figures, or checklists. N/A

2

Figure 1. Top –Level Process Flowchart

Note: The RAD process is concurrent with the AS Development and the SRD process is concurrent with the AS and RFP Development process and must be completed before the RFP can be released.

3

Figure 2. Process Flowchart

Note: Process is based on Sole Source, Supply-Type Contract > $50M with OSD Oversight. Combined with the RAD process, it will support Service-Type Contracts.

4

5

5.0

Measurement

. Acquisition teams are responsible for establishing a realistic baseline schedule for each process task. Once the team establishes a baseline schedule, the PM is responsible for tracking, down to WBS level 2, their baseline schedule and actual completion dates. They are also responsible for reporting their top-level metrics as outlined in Figure 1. While an acquisition team may start planning as early as necessary, metric tracking will not begin until the Program Charter, ADM, or similar document is signed by the PEO and a copy has been submitted to the “ AFLCMC/AZA workflow mailbox

” for program tracking purposes. The PM will then manually track reporting metrics and report them into the AFLCMC Process Metrics dashboard at least quarterly: https://cs4.eis.afmc.af.mil/sites/1749/Lists/AS_RFP/AllItems.aspx

. Please note, the PM is not responsible to report metrics for individual delivery orders or task orders placed against an Indefinite Delivery/Indefinite Quantity contract.

The top level metrics that will be reported include: 1.1 Develop ASP, 1.2 Conduct ASP, 2.1

Develop RFP and 0 AS RFP collected by requesting the following dates:

5.1

Standard Process Start Date

5.2

ASP Briefing

5.3

ASP Minutes Signed

5.4

Draft RFP Released

5.5

Formal RFP Released

In addition to the schedule metrics, the PM will provide the following information for each program:

5.6

Program Name, PEO, Program Manager, Contracting Officer, Buying Office Location

5.7

Acquisition Category/Service Category Designation

5.8

Oversight Level

5.9

Competitive or Sole-Source Acquisition

5.10

Dollar Amount

5.11

Schedule variance between baseline and actuals and possible causes. Some possible causes to be aware of when documenting variances are as follows:

5.11.1

Inadequate or incomplete inputs

5.11.2

Strategy redirection

5.11.3

Customer rejects

5.11.4

Wait time for reviews

5.11.5

Wait time for sub-process inputs

After the RFP is released and prior to receipt of proposals, the PM will initiate a review with representatives from the Program Office, the ACE, Contracting, Finance, etc. to capture lessons learned and identify possible areas for process improvements.

6

6.0

Roles and Responsibilities

6.1

AFLCMC/AQ (Process Owner) is responsible to:

6.1.1

Maintain and coordinate any changes to the “Pre-Award AS and RFP Process” in the AFLCMC Process Directory . HQ AFLCMC/AQ will also solicit feedback from process users on an annual basis to assist in the identification of possible process improvements. HQ AFLCMC/AQ will also take the lead to make timely revisions to the standard process and obtain AFLCMC Standards and Process

(S&P) Board approval as required.

6.1.2

Maintain the AFLCMC ASP Briefing Templates

6.2

PM is responsible to:

6.2.1

Collect and report metric data during development of the AS through solicitation release and provide feedback to process owner, functionals, etc. as needed.

6.2.2

Contact AFLCMC/AQ (Acquisition Center of Excellence) to obtain the most current ASP Template. Coordinate with all stakeholders to solicit input and develop the acquisition strategy briefing and all supporting documentation to provide the ASP Chair with the best viable acquisition strategy and identify any key program issues.

6.2.3

Submit a copy of the Program Charter, ADM, or similar document to the

AFLCMC/AZA and AFLCMC/XP workflow mailboxes.

6.2.4

Populate the AFLCMC Process Metrics dashboard at least quarterly: https://cs4.eis.afmc.af.mil/sites/1749/Lists/AS_RFP/AllItems.aspx

.

7.0

Tools

. At this time, there are no mandated tools for the AS and RFP development process; however, the following list of websites may be useful to the PM.

7.1

AF Contracting Central: https://cs.eis.af.mil/airforcecontracting/knowledge_center/Pages/5315-main.aspx

7.2

ACE Gameboard: https://cs.eis.afmc.af.mil/sites/ASCACE/default.aspx

7.3

Acquisition Documentation Development and Management (ADDM): https://cs3.eis.af.mil/sites/AF-AQ-00-04/default.aspx

7.4

DAU Acquisition resources, e.g., https://dap.dau.mil/Pages/Default.aspx

7.5

PM Toolkit: https://hanscomnet.hanscom.af.mil/pmtb/MR/MR.html

7.6

Seven Steps to a Services Contract http://acquisition.gov/sevensteps/step4_pwsconduct.html

7.7

AFLCMC Engineering Guide to Writing RFP Technical Content

7.8

Proposal Evaluation Team Plan (PETP) is a tool used in Sole Source Acquisitions to establish and execute a plan of action to develop an RFP and evaluate a contractor’s proposal in a timely and efficient manner. The template is located at:

7

https://cs.eis.afmc.af.mil/sites/ASCACE/pages/Acquisition%20Planning.aspx?PageVie

w=Shared

7.8.1

The PETP covers:

7.8.1.1

Activities needed to develop an RFP (including justification and approval [J&A]), prepare for receipt of a proposal, proposal evaluation, and contract award (includes OPRs, start/end dates, inputs/outputs).

7.8.1.2

Team member expectations and responsibilities.

7.8.1.3

RFP Requirements/Ground Rules & Assumptions enables a common understanding of the RFP requirements and how the team will operate (includes distribution plans, ROEs, communication plans, battle rhythm meetings, evaluation framework, templates,

Work-in-Process (WIP) board use, file structure, etc.)

8.0

Training

. Depending on your location, some or all of the following training modules may be available. Contact your local ACE for further details.

8.1

Requirements Definition:

8.1.1

Pre-Award Schedule

8.1.2

Market Research

8.2

Strategy Development:

8.2.1

Risk Workshop

8.2.2

AS Planning Assistance

8.2.3

AS Process Training

8.3

RFP Development:

8.3.1

Sections L & M Workshop

9.0

Definitions, Guiding Principles or Ground Rules & Assumptions

.

9.1

Process: While this standard process outlines the activities for a supply-type acquisition > $50M with OSD oversight sample (

Figure 2

), it will accommodate all types of acquisitions with minor adjustments for appropriate approval levels and

MIRT/Peer reviews as required. Because of the process concurrency, metrics have been established as cumulative work days. While the RAD and SRD processes have been identified in

Figures 1

and

2

; AFLCMC/AQ does not own these processes.

9.2

“As-Is” Process: While this initial “as-is” standard process is considered a baseline, it will be acceptable to make minor “fixes” as long as the process still complies with overarching policy and guidance. An assumption has also been made that the RFP developed under this process will be used to initiate the

Standard Process for Contract

Award (Sole Source)

, or the

Standard Process for Contract Award (Source Selection)

.

Once the RFP has been released, any changes to the competitive RFP will be addressed

8

by formal contractual amendment. Changes to sole source RFPs will be addressed through each program office's internal change process.

9.3

“To-Be” Process: Once the baseline “as-is” process is established, the next step is to optimize the “to-be” process. Because the calendar flow day metrics are based on a small sample size, additional metric data will be needed to assess possible process improvements. This process should also be reviewed annually to optimize the process and provide lessons learned.

10.0

References to Law, Policy, Instructions or Guidance

. Process standardization is required by the AFMC and AFLCMC Strategic Plans. References that relate to this process can be found within the attachments.

Attachment 1

. Sample

Program Charter

Attachment 2.

WBS

MS Excel

Attachment 3.

WBS Extract

WBS - AS RFP

9

Attachment 1: Sample Program Charter

AFLCMC Directorate Name

Program Charter

Program Name:

Program Manager:

Date:

Acquisition Strategy Panel (ASP):

The ASP for this program shall be conducted no later than ___________________ in accordance with the AFLCMC Pre-Award Acquisition Strategy (AS) and Request for Proposal (RFP)

Standard Process.

The date of this document herein initiates the acquisition planning process.

PEO Signature Block

10

11

Process Name: Pre-Award Acquisition Strategy and RFP Development

Process Owner: AFLCMC/AQ

Attachment 3: Work Breakdown Structure

Last Updated: 27 Oct 2014

12

Attachment 3: Work Breakdown Structure

Process Name: Pre-Award Acquisition Strategy and RFP Development

Process Owner: AFLCMC/AQ

3

3

Lvl WBS

Activity Activity Description

1.4.1

1.4.2

Draft and socialize

J&A

Obtain J&A approval

The RFP can be initiated concurrently with the AS development.

1 2.0

Develop RFP

PM

OPR

Duration

Calendar

Days

300

Supplier

PM and all

Stakeholders

Input

PBR Submittal

Requirements

Output Customer

Last Updated: 27 Oct 2014

Tool Reference or Guide

3

3

2 2.1

3

3

2 2.2

3

3

2.1.1

2.1.2

2.1.3

2.1.4

2.2.1

2.2.2

2 2.3

Develop RFP

Develop draft RFP

Request data call

Conduct exchanges with industry

Develop a draft request for proposal (RFP). Begin working with all government stakeholders to develop contract structure and type, identify product support requirements, develop delivery schedules, develop and approve contract data requirements lists (CDRLs), make an DD 254 determination, etc. Once the SAT has approved the proposed acquisition strategy, begin soliciting feedback on the Draft

RFP from contractor.

PM

Finalize Draft RFP

Develop Source

Selection Plan (SSP)

Prepare Source Selection Plan (SSP). Note: SSP must be approved before the RFP can be released. [For competitive]

Develop draft SSP

Obtain SSA approval and signature

Source

Selection

Evaluation

Board (SSEB)

Chair

PM

SSA

Conduct PEER review

For competitive acquisitions, a peer review must be accomplished on all programs >$1B and special interest programs.

USD(AT&L)

2 2.4

3

3

2.4.1

2.4.2

Release solicitation Obtain approval to release request for proposal (RFP).

For sole source acquisitions, obtain legal review for legal sufficiency. PCO and

Conduct legal review

AFMC LO

Obtain business clearance

For competitive acquisitions, obtain Business Clearance approval to release the Formal RFP.

PCO,

AFLCMC/PK, and AFMC LO

3

3

2.4.3

2.4.4

Obtain SSA approval to release

For competitive acquisitions, obtain source selection authority (SSA) approval to release request for proposal (RFP)

Submit formal solicitation

STOP

For competitive acquisitions, submit formal solicitation to

FedBizOpps. For sole source acquisition, submit formal solicitation to contractor.

Total Cumulative Calendar Days: 330

270

60

15

30

PM and all

Stakeholders

Peer Review

Team

PCO

PCO

PBR Submittal

Requirements

Source Selection

Authority (SSA)

Draft RFP

Final RFP

MDD ADM, ASP

Minutes, Final

RFP, Signed AS

MDD ADM, ASP

Minutes, Final

RFP, Signed AS

Draft RFP

Draft RFP

Industry

Industry

Approved SSP SSEB Chair

AT&L, MDA

RFP approved for release

PCO

RFP approved for release

PCO

ConWrite

ConWrite

FAR Part 15, SAF/AQC

Policy Memo, 11-C-05, and Mr. Kendall

Template Outline, 20

Apr 11

FAR Part 15, SAF/AQC

Policy Memo, 11-C-05, and Mr. Kendall

Template Outline, 20

Apr 11 https ://cs .ei s .a f.

mi l /a i rforcecontr a cti ng/knowl edg e_center/Pa ges /

5315-ma i n.a s px

FAR Part 15.3 DOD

Source Selection

Procedures Para 2.2

DOD Policy Letter, Peer

Reviews of Contracts for Supplies and

Services, 29 Sep 08

MP 5301.9001(f)

MP 5301.9001(f)

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